Criminal Justice and Public Safety – serie

The second edition of Treating the Criminal Offender was written in an atmosphere of disillusionment and severe criticism of the traditionalist ap­ proach to treatment. As crime rates soared, the voices of the critics rose in volume and intensity. And so, this third edition-revised toward the end of the decade of the 1980s-embodies the shift in emphasis from rehabilitating the offender to protecting the community. This shift, in our opinion, does not reject the goal of changing the of­ fender so as to effect his reintegration into society; it uses the strategy of intensive supervision and surveillance only to effect the desired goal. The use of electronics to monitor the offender's whereabouts and the swift ap­ plication of punitive measures following. the awareness of any violation are extrinsic techniques of control. It is our opinion that for the deep, more lasting changes in behavior, some form of casework, counseling, and/or psy­ chotherapeutic intervention is essential. We are the cohorts who believe in the effectiveness of such treatment modalities when and if applied to the right target population at the appropriate time.

SOME DISCLAIMERS It is somewhat unusual to begin a book by declaring what it is not, but the topic of police behavior is so complex that it requires the writer to state as early as possible the limits of what he has written here to describe and explain a police officer's experience. In order for the reader to get a clear idea of what areas of police behavior are to be described, it is nec­ essary to delineate those aspects of police behavior that are beyond the scope of this book. First of all, this book is about the psychological effects of police work on policemen: male police officers. Nearly all of the police officers with whom I have worked have been men, so my impressions and opinions are based on the experiences of male police officers. Consequently, descriptions and expla­ nations of the motivations, anxieties, psychological defenses, and resultant behavior of police officers must be limited to policemen. I believe that there are significant differences in the psychological effects of police work on men and women, but this book does not address this issue.

From Damon Runyan's colorful tough guys in black shirts and white ties to recent media coverage of John Gotti, the `dapper don', public depictions of racketeers in the United States have drawn attention away from the true nature of organized crime and its extensive penetrations into mainstream business. The Upperworld and the Underworld: Case Studies of Racketeering and Business Infiltrations in the United States strips away the romantic patina and reveals the significant impact of racketeering on vital segments of American industry. In this informative study Robert Kelly explores two fundamental questions: `Why is organized crime a serious problem in some businesses and industries, and not in others?' and `What are the consequences of racketeering activities for labor organizations and businesses tainted by a criminal presence?' He examines the blurred demarcation between the legitimate and illegitimate sectors of society and explains the reasons for this occurrence. In the process, Kelly provides a distinct vantage point for understanding organized crime, not just as an `outlaw fringe' preying on society, but as a disturbingly integral element of our social and economic structure. Moreover, he confirms a widely held thesis that organized crime is not merely parasitic but an institutional component of American society. The Upperworld and the Underworld affords a fascinating view of the current state of organized crime in the United States and the rise of nontraditional criminal organizations in new immigrant communities. The volume is an essential resource for students and scholars concerned with issues of crime and its effects on the economy.

From Damon Runyan's colorful tough guys in black shirts and white ties to recent media coverage of John Gotti, the `dapper don', public depictions of racketeers in the United States have drawn attention away from the true nature of organized crime and its extensive penetrations into mainstream business. The Upperworld and the Underworld: Case Studies of Racketeering and Business Infiltrations in the United States strips away the romantic patina and reveals the significant impact of racketeering on vital segments of American industry. In this informative study Robert Kelly explores two fundamental questions: `Why is organized crime a serious problem in some businesses and industries, and not in others?' and `What are the consequences of racketeering activities for labor organizations and businesses tainted by a criminal presence?' He examines the blurred demarcation between the legitimate and illegitimate sectors of society and explains the reasons for this occurrence. In the process, Kelly provides a distinct vantage point for understanding organized crime, not just as an `outlaw fringe' preying on society, but as a disturbingly integral element of our social and economic structure. Moreover, he confirms a widely held thesis that organized crime is not merely parasitic but an institutional component of American society. The Upperworld and the Underworld affords a fascinating view of the current state of organized crime in the United States and the rise of nontraditional criminal organizations in new immigrant communities. The volume is an essential resource for students and scholars concerned with issues of crime and its effects on the economy.

Terrorism, continuing unabated in the contemporary world, is having a serious impact on the lives of people and nations. Once, only govern­ ments and ruling classes possessed the power to coerce large segments of the world's peoples. Today, a handful of thugs, covered and concealed by a collection of terrorist organizations, are disturbing people every­ where by perpetrating dramatic criminal acts-bombings, kidnappings, assassinations, etc.-on an almost daily basis, in places specifically cho­ sen for their vulnerability: a railroad train, a pub, a beachfront apartment, a bus, a restaurant. Furthermore, a few of the world's most notorious terrorist groups are associated in a loose coalition, which has left around the earth a trail of violent crimes against humanity of the most heinous type. Among these outrages are random murder, including the killing of innocents, and barricade and hostage situations involving the elderly and young children. Many of the victims of these terrorists are randomly selected for the sole purpose of obtaining maximum shock action calculated to attract widespread exposure via the communications media. A dramatic example is the assassination of Lord Louis Mountbatten, one of the most distinguished soldier-statesmen of the century, by terrorists of the Pro­ visional Wing of the Irish Republican Army (LR.A.).

The question of how to use police resources productively, par­ ticularly in this era of tight municipal budgets, is a major con­ cern for police chiefs and others responsible for crime control. In Crime Control: The Use and Misuse of Police Resources, David J. Farmer provides new insights into this question and sug­ gests a practical resource allocation approach for police poli­ cymakers and administrators. The book documents the results of current police resource allocation practices and describes the major research studies that have identified a need to restructure police field operations. It very usefully outlines the development and nature of allocation techniques and ana­ lyzes the political contexts which influence resource alloca,., tion. After describing planning at the neighborhood level that should inform the allocation process, the author provides a comprehensive "planning-budgeting-resources allocation" approach to managing a productive police department. This comprehensive approach is illustrated by an account of the Manpower Allocation Review System (MARS), which the author developed and introduced in the New York City Police Department in 1972 when I was commissioner. As I can vii FOREWORD viii attest, the MARS approach had practical utility. For the author, it served as a forerunner to the more elaborate system he describes in this book.

Traditionally, terrorist bands operating in rural or urban areas use vio­ lence to cast themselves as a legitimate political force. Necklacing, plac­ ing an oil-soaked tire around the neck of an informer and then igniting it, and knee-capping, positioning a handgun behind the kneecap of a "tout" (a police informer) and then squeezing the trigger, are among the enforcement methods used by clandestine groups to administer "revo­ lutionary justice." Necklacing is used by the African National Con­ gress (A.N.C.). Knee-capping is a traditional Irish Republican Army (I. R. A.) tactic. Governments frequently lend credibility to the terrorists' claim of legitimacy by not implementing measures intended to extirpate them. Frequently, democratic societies fear that rigid control measures pose a threat to civil liberties. Reluctant to move, a democracy is often ham­ strung by terrorists bent on manipulating its values. A media campaign, intended to mobilize public opinion against the terrorists and garner mass support for the government and its control measures, is the linchpin of any antiterrorist campaign. Centralized intelligence-gathering is another essential component. Terrorism, when it becomes a regular campaign of bombings and other atrocities, is no longer a problem for just the police and the army. The entire society is affected. For example, all groups comprising the multi ethnic popu- vii viii PREFACE tion of Sri Lanka and South Africa are presently exposed to the terror­ ist threat.

SOME DISCLAIMERS It is somewhat unusual to begin a book by declaring what it is not, but the topic of police behavior is so complex that it requires the writer to state as early as possible the limits of what he has written here to describe and explain a police officer's experience. In order for the reader to get a clear idea of what areas of police behavior are to be described, it is nec­ essary to delineate those aspects of police behavior that are beyond the scope of this book. First of all, this book is about the psychological effects of police work on policemen: male police officers. Nearly all of the police officers with whom I have worked have been men, so my impressions and opinions are based on the experiences of male police officers. Consequently, descriptions and expla­ nations of the motivations, anxieties, psychological defenses, and resultant behavior of police officers must be limited to policemen. I believe that there are significant differences in the psychological effects of police work on men and women, but this book does not address this issue.

The second edition of Treating the Criminal Offender was written in an atmosphere of disillusionment and severe criticism of the traditionalist ap­ proach to treatment. As crime rates soared, the voices of the critics rose in volume and intensity. And so, this third edition-revised toward the end of the decade of the 1980s-embodies the shift in emphasis from rehabilitating the offender to protecting the community. This shift, in our opinion, does not reject the goal of changing the of­ fender so as to effect his reintegration into society; it uses the strategy of intensive supervision and surveillance only to effect the desired goal. The use of electronics to monitor the offender's whereabouts and the swift ap­ plication of punitive measures following. the awareness of any violation are extrinsic techniques of control. It is our opinion that for the deep, more lasting changes in behavior, some form of casework, counseling, and/or psy­ chotherapeutic intervention is essential. We are the cohorts who believe in the effectiveness of such treatment modalities when and if applied to the right target population at the appropriate time.